.62 



Release Monday, January 30, 1911 



HOW MANY) 

WHEN DO [ Children Fail? 

WHY DO ) 



A Cooperative Study as to Means of Reducing 
Non-Promotion and Undue Acceleration 



Which is worse, retardation or acceleration? 

Exception was recently taken by one city superintendent 
of schools to our Efficient Citizenship No. 393 because we re- 
printed, without comment, two extreme diagnoses of retarda- 
tion — acceleration of the unfit and non-promotion of the fit. 

More recently the program committee of the Washington 
Irving High School (New York City) declared in a brief en- 
titled The Opposite of Retardation: "We believe that it is of 
more value to find out how successful teachers educate their 
children than it is to dwell upon the negative side of retarda- 
tion and its causes. Why mention the reasons of failure and 
elaborate them !" 

But why confine ourselves to either extreme? Most of 
us are able to go down a road whether we walk in the middle, 
on the extreme left, on the extreme right or zig zag from left 
to right. Certainly no one can doubt that it has been worth 
while for the school men of the country to begin to ask ques- 
tions about promotion and non-promotion, acceleration and 
retardation, pupil's fault, parent's fault, school's fault, budget's 
fault, overcrowding's fault. 

The purpose of asking questions is primarily to put in cir- 
culation best methods, and not merely to impart information. 
Contributions will be welcome to the three kinds of light 
thrown on best methods for reducing non-promotion and pre- 
venting undue acceleration presented in this report : 

I. Digest of returns from seventy-six answers to our non- 
promotion inquiry No. 2; 

II. Forms used and questions asked by various city super- 
intendents ; 

III. Extracts from letters addressed to the Bureau of Mu- 
nicipal Research and from official reports. 

[I] 



v^V 



I. Digest of returns from seventy-six answers to our non-pro- 
motion inquiry No. 2 

Of 76 superintendents whose replies are given in the en- 
closed table, 

71 have irregular individual promotions in addition to stated 
general promotions; 

45 expect the principal to see each pupil before marking him 

for non-promotion; 

32 expect the principal to require written explanation by the 

teacher as to each child before it may be held back; 

26 report that the superintendent's office reads these explana- 
tions; 

9 report that the superintendent's office requires oral explana- 
tion; 

30 report that the written explanation gives the name of each 
child and the cause or causes of his non-promotion; 

40 count inefficiency of teacher as one cause of non-promotion; 

28 count too many classes as a cause of non-promotion; 

33 count crowded classrooms as a cause of non-promotion; 
16 count part time as a cause of non-promotion; 

59 count irregular attendance as a cause of non-promotion; 
57 count late entrance as a cause of non-promotion; 

60 report that the superintendent or principal discusses with 

teachers and parents the causes and remedies for non- 
promotion; 

46 plan to discuss non-promotion in their next report; 

67 base promotion partly on term's work and partly on ability 
to do next term's work in advance grade. Of these 22 
lay emphasis on the term's work, 38 on the child's ability 
to do next term's work, 3 say "cannot separate the two," 
and 2 say "depends on child." 

6 promote on the term's work; 

5 promote on child's ability to do next term's work; 

14 have special "catch-up" classes; 

10 have vacation school classes for non-promoted children; 

66 require that special attention be given to pupils in danger 
of failing; 

45 give other special attention to non-promoted pupils; 

20 do not state time for this special attention, but answer "time 
not stated," "varies," "when teacher can," "when needed," 
etc. 

25 devote part of each day to this special work, 9 do not spe- 
cify time, 16 give the time variously as "before and after 
sessions," "late P. M.," etc. Leadville, Colo., employs a 
special teacher, Champaign and Danville, 111., leave mat- 
ter to parents, Hazleton, Pa., devotes one-third time to 
individual work; 

45 believe it possible to promote a higher percentage of pupils 
without danger to the thoroughness of their schools; 

16 have found inefficiency in pupils' work resulting from special 
promotions; 

18 have found inefficiency resulting from irregular promotions. 

[2] 



i-S. 



(b^ 



NON-PROMOTION IN 76 CITIKS: KKFORTS TO UNDERSTAND AND REDUCE 

Plus a Graphic Argument for Uoiform, Adequate School Records and Reports 



twice Qt other than stated p 
loled nt first slated period 



/ time from September tlirouKli June I; 

o also failed at first promotion period ? 
enernl promotioas ? 
>tiou period ? 

11 At second slated period 



ichool dui 
;ipal expected 



y be held back ? 



jidren promoted plus children not promoted is subtracted from i 

pupil before markinK him for non-proraotic 
written explauation by teacher as to each cli 
intendent's office rend these cxpleiiatioiis ? 

lal aud superintendent analyze the causes reported by teacher ' 

ises include inefficiency of the teacher ? 

Crowded class rooms ? 21 Part time ? 22 Irreenlai 

riutendent or principal discuss with teachers and parents the cause: 

scuss non-promotion in your last report ? 2( 

n=No or none; nk = Not known; x = No answer ; ?=Doubt; *=Special i 



19 Toon 

attendanc 

i remedies oi 



23 Late entrance ? 
swer; — = See preceding i 



"cntch-up" class* 



"""i§' 



1 lo pupils in daneei 
lo the tUorouKliucs 



31 On ability f 



y other form of promotion ? 



1 


2 |3 


4 


5 


6 


7 


8 


9 j 10 


11 


12 


13 14 15 16 1 


17 


18 


19 


20 


21 


22 


23 


24 1 


25 1 


26 


27 


28 { 


29 


30 1 


31 


32 


33 


34 


35 


36 


37 


38 


39 


40 


41 


RE,MARKS 1 


Elizabeth, N. J 

Erie, Pa 

Ilecatur, 111 

ManchesLer, N. H. . . . 

Williainsport. Pa 

Covington Ky 

Lexington, Ky 

Amsterdam, N. Y. . . . 


S875 I 
7667 2 
6189 J 
5507 2 
5432 1 
4412 I 
4350 2 
3320 2 
^060 2 
iSoJ 2 
.189 I 
2569 2 
456S 2 
1250 2 
1172 2 
2629 I 
11362 I 
2149 2 

1504 I 

2971 2 

1590 2 
4137 2 

2116 2 
1740 2 
2750 2 

2300 1 

6582 1 
2466 1 
3222 2 
11964 2 
1348 1 
1920 1 
14435 2 
3004 2 
1500 1 

2308 J 

906 
1529 

1193 
3S10 
1749 
3124 

5493 
3676 
1622 
10550 
3937 
6801 
2967 
1788 
1195 
4599 
1355 
2017 
3000 
8879 
3864 
33519 
4201 
3679 
2888 
nk 

2242 
4854 
4989 


728 
442 
520 
552 
515 
830 

H 
246 

336 
577 
93 
191 
142 
1261 

nk 

nk 

81 

312 

nk 

nk 

30 
116 
597 

nk 

620 
144 
nk 
1561 
nk 
,S» 
nk 
292 
160 
nk 
104 

„\° 
nk 

nk 

85 
324 

nk 
361 

nk 
494 

nk 
728 

nk 

820 

2 nk 

1 258 

2 123 
I 799 

1 104 

2 nk 
1 nk 

1 ^63 

2 2982 
I 363 
I 379 

1 nk 

2 nk 

2 nk 
2 nk 

2 3S5 


420 
297 
456 

78T 

237 
50 

302 
443 
69 
15S 

nk 

29S 

i 

238 
24 

"5 

249 

nk 

275 

161 
104 

nk 

384 

172 
273 
590 
252 
nk 
680 

nk 
nk 

nk 

303 
2635 

nk 

12) 

nk 

257 


93 

325 

29 
5 

nk 
nk 
nk 
6 

6 

nk 
nk 
41 

"K 

nk 
nk 

6 
nT 

nk 

nk 

nk 
nk 
nk 

nk 

89 

nk 

nk 

92 

nk 

nk 
nk 


y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 

y 
y 

y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 

? 
y 
y 

y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 

y 
y 
y 
y 
y 

y 
y 

V 


678 

28-30 

347 

203 

5 

'11 
42 

6 
25 
nk 

268 

nk 
266 
nk 

8 

nk 

6 

77 
nk 
nk 
nk 

26 

47 
nk 
nk 
nk* 
nk 
48 
nk 
29 

„/ 
nk 

44 

nk 
nk 
nk 

72 

nk 

6 

1082 

15 
3 
36 
27 
nk 
nk 

nk 
nk 

nk 
nk 

nk 

nk 


52 
3 

1 

nk 
nk 

nk 
nk 

nk 

nk 
nk 
nk 
nk 


7776 
6119 
3791 
4229 
3909 
292S 
3538 
3200 
2496 
1775 
725 
1997 
3842 

862 
2117 
9650 

nk 
1 190 

2239 

nk 

nk 
nk 
nk 

nk 


6489 

3594 
4152 

3769 
3200 
2468 
1716 

1936 
3821 
1087 
863 

2184 

nk 

1544 
2306 

2448 
nk 

nk 

2490 

1692 


y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 

y 

y 
y 
y 

y 

y 

y 

y 
y 
y 

1 

y 
y 
y 
y 
y 
y 


y y y y 

y Oral Report * 

y y y* y 
y y y y 
y y y y 
y y y y 

y Oral Report 


y 
y 
y 
y 
y 
y 
y 
y 
y 

y 

y 
y 
y 
y 

St. 

y 
y 
y 

y 

y 
y 
y 
y 
y 
y 

St. 

y 
y 
y 
y 
y 
y 

St. 

y_^ 

y 
y 
y 
y 
y 
y 
y 
y 

St. 

y 

St. 

y 

y 
y 
y 
y 

y 
y 

y 

y 

St. 

y 

y 
y 


y 

y 
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y 
y 
y 
y 
y 

(sf.) 

y 

St. 

y 

y 
y 
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y 
y 
y 

y 

y 

St. 

y 

St. 
St. 

y 
y 

y 

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y 

St 

y 

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y 

y 

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y 
y 

y 
y 

St. 

y 

y 

y 
y 


y 

y 
y 

y 

y 
y 

(n) 

y 

y 

y 

y 
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y 

y 

y 

y 
y 

y 
y 
y 
y 

y 

y 

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y 
y 

y 
y 


y 

y 

y 
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y 

y 

(n) 

y 

y 

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y 
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y 

y 

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St. 

y 

y 
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St. 

y 
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y 
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ly) 

y 

y 
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(y) 
y 


y 
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(y) 

y 
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y 

y 
y 
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(y) 
y 
y 
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y 

y 
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y 
y 
(y) 

y 
y 

y 
y 
y 
y 
y 
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y 

y 
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y 

y 
y 
y 
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y 
y 
y 

(yi 
y 
y 


y 
y 
y 

y 
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y 
y 

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y 

y 
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y 
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y 
y 
y 
y 
y 

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y 
y 
y 

y 

y 
y 

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y 
y 
y 
y 

y 
y 


y 
y 
y 
y 

y 

y 

y 

y 

y 
y 
y 

y 
y 

y 

y 
y 


y 
y 
y 

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y 

y 
y 
y 

? 
y 
y 
y 

y 
y 
y 

? 
y 

y 
y 
y 


y 

y 

y 
y* 


y 

y 

y 
y 


y 
y 
y 
y 
y 
y 
y 
y 
y 

y 
y 
y 
y 

y 
y 
y 
y 

<J) 
y 

y 
y 
y 

y 
y 
y 
y 
y 
y 

y 

y 
y 
y 
y 
y 
y 
y 
y 
y 


y 

y 

y 
y 

y 
y 

y 
y 

y 
y 

y 


y 

y 

y 

Y 

y 
y 
y 
y 

y 
y 
y 

y 
y 

y 

y 

y 
y 

(y> 

y 

y 

y 
y 
(yj 

y 

J 


6 
3 


3 
5 


y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 

y 

y 
y 
y 
y 

y 
y 
y 

y 

y 

y 
y 
y 
y 
y 
y 
y 
y 
y 

y 
y 

y 
y 
y 


y 
y 
y 

y 
y 
y 
y 
y 
y 
y 

y 

nk 

y 
y 

y 
y 

y 
y 
y 
y 
y 
y 
y 
y 

y 
y 


P. M. aud Fridays 

When assistants free 


y 
y 
y 
y 

y 

y^ 

y 
y 
y 
y 
y 

y 
y 

y 

y 
y 
y 

y 
y 

y 
y 

y 
y 
y 
y 

y 
y 

>■ 

y 
y 

y 

y 
y 

y 
y 
y 

y 

y 
y 
y 
y 

y 


y 
y*' 

y 

y 
y 

? 

? 
y 

y 
y 
y 


y 

y** 

y 

y 

y 

y 
y 

? 

? 
y 

y 
y 
y 


y** 

n 
u 

y 

n 
n 

y 

u 

y 
y 

n 

X 

? 

y 

n 
n 

* 

u 

y 
y 
y 


? ; ,", 

Sept. 19U biennial... "Brighter pupils should be promoted ...'.'..'. 


Elizabeth, N. J. 
Erie. Pfl. 


Not stated 

When can 

Jefore and after session.. 

Daily, P. M 

When cau 


^"- ' "Report made two weeks before promotion. Reasons followed up Ueca'tur, III. 

]°^-; Supt requires explauation. "In a very few cases Manchester, N. II. 

j„:; Williainsport, Pa. 

.olle-priited::::::;:::::::::::::::::::;:;:::::::;::::::::::;:;:::::::;::::;:::-^ 


Port Huron, Mich.... 


y y 
y n 
n y 

y n 

y y 
y y 
y y 


y 
y 

y 
y 
y 


y 
y 

y 
y 
y 


A. M., daily 

\. M., daily 

Not stated 


X 


rtuiaicrtiHUi, IN. V . 


Columbus, Ind 

Selma. Alu 


None this year 


Supervisors confer with teachers. *•" Varies " Columbus, Ind. 


Fort Smith, Ark 

Fresno. Cal 


Help's period daily 

Not stated 


Joue printed *Not unless parents cau he made to see need of 'lioiiie study '.'.'.'.'.'.'.'.'..'.[ iForTsiuith, Ark. 


Santa Rosa, Cal 

Leadville. Colo 

Danbnry, Conn 

Waterbury, Cotin 


Special teacher 


•^ow 

Dec. 1 

■^ow 

Feb. i^ 

Mow 


It rather increases efficiency .......'....,............. 

Not jointly !.!!!!!! 


aanta Rosa, Cal. 
[^eadville, Colo. 


)uring and after session 
leports to parents 


Vaterbury, Conn, 
whampaigu, 111. 
Danville, 111. 
MoHnc, 111. 
3ttawu, 111. 
Streator, 111. 
40gausport, Ind, 
Michigan City, Ind. 
loone, la. 
Uirlingtou, la, 

;:iiutou, la. 

Dskaloosa, la. 


Champaign, III 








Cannot state degree of comparison. "•Some from the too regular fonus 




n Oral Report I 








n y 
n y 
X y 

n y 
y x 


y 
y 
y 


y 
y 
y 

y 

(vl 




None this year *Supt. promotes. Teachers bring yenrly reports." Sticks rensoiisforfai'lure 




When can 


Loyansport, lud 

Micbi^ian City, Ind... 




■^ow v.!!!!!!!!!! 




Before and after session.. 


liurlinL'ton Ii 


Vhen can 




No report. '*Viirii;s 






jj 






jj 






X Oral Report 
y X 1 X 1 X 

y y 1 y 1 y 




*^one printed 


Larcelv 


PittsbufR, Kans 






Pittsburg, Kaus. 












Vlar'.', 1911;:::;:;;:;: 






Chicopee, Mass 


y 

y X 

y y 
y y 
y y 


y 
y 


y 
y 
y 


Not stated 






Ihicopce, Muss. 


nk 5586 




*Y M C a' school **Not without stromrer teaching force' 




All times 






Melnse Mass 


nk 
nk 
nk 

5 
-n| 

nk 
nk 
nk 
3 
nk 
nk 

91 

nk 

nk 

nk 
nk 

nk 
nk 


nk 
nk 
nk 

nk 
2517 
1143 
1721 

866 
nk 
nk 


vast ^ hour daily 
















SouthbridKe. Mass. . . 








Southbridge, Mass. 










Grand Rapids, Mich.. 

Muske^au, Mich 

Owosso. Mich, ... 

Traverse City, Mich. . 

Winona, Mich 

VicksburH. Miss 


y n 
y n 
y n 
y n 
y n 


y 
y 


y 
y 








Grand Kapids, Mich. 
Muskegan, Mich. 
Dwosso, Mich. 
Traverse City, Mich. 




uly, 1910 

Mow 

uly or Sept 

Mone printed 


•" Mostly " 

^Depends on individual 

*Supl. sees each 


)aily class, 

minutes tlaily 


, 


^ », .... 


yicksb..rt,.Miss. 


Jefferson City. Mo,,.. 

Sprin^'field, Mo 

Great Falls, Mont 

Concord, N. H 


2836 


y 

y 
y 
y 

nk 

y 
y 
y^ 

y 

nk 

y 

y 
y 
y 

y 
y 

y 
y 

nk 

y 


y n 

n y 

y y 


y 
y 

y 
y 


y 
y 
y 
y 
y 
y 
y 
y 

y 
y 
y 

y 
y 
y 
y 

y 
y 

y 

y 

y 

y 


?; 

y 
y 
y 
y 

y 

y 
y 
y 

y 
y 
y 
y 

y 
y 

y 

y 
y 
y 
y 

y 
y 


y 

y 
y 
y 

y 
y 

y 
y 

y 
y 
y 
y 
y 
y 

y 
y 
y 
y 
y 
y 

y 
y 


y 

y 

y 
y 

y 

y 
y 
y 

y 

y 
y 
y 

y 


y 

y 
y 
y 
y 
y 

y 
y 
y 

y 
y 
y 

? 

y 
y 
y 
y 

y 

y 
y 
y 


y 


y 


y 
y 
y 
y 
y 
y 

y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 
y 

y 
y 
y 
y 
y 

y 
y 

y 


y 

y 
y 

y 
y 

y 

y 

y 
y 
y 

y 


y 
y 
y 
y 

y 
y 

y 
y 

y 
y 
y 

y 

y 
y 


nk 


nk 
3 


y 
y 
y 
y 

V 

y 
y 
y 
y 

y 

y 
y 
y 
y 
y 

y 
y 
y 
y 
y 

y« 

y 

y 

y 


y 
y 
y 
y 

nk 

y 
y 
y 
y 

y 

y 

y 

y 
y 

y 
y 
y 

y 
y 


When can 

D.iilv 


y 
■? 
y 

y 
y 

y 


y 

J? 
y 

y 

y 
y 

y 


y 
y 

y 
y 


None printed 




jpriiiKfielil, Mo. 




















Dover. N, H. 


Montclair. N. J 

Johnstown, N. Y 

Kingston, N. Y 

Mt. Vcruon. N. Y ... 

Ashevillc, N. C 

New Bern, N. C 


3u6o — 
nk nk 

2458 2496 
nk 3948 

2129 2289 
nk nk 

nk — 

49S6 - 
nk nk 
1354 - 
993 , 34 
31SS — 
1045 — 










Moutclair, N. J. 


y y 

y n 

X y 

y y 
y n 
y y 
y 1 
y y 


y 
y 

y 


y 
y 

y 

y 


Irregularly by substitute 












Kingston, N. Y. 


Aft hooi ' 






Mt. Vernon, N. Y. 








Ashevillc, N. C. 








New Bern, N. C. 


nail 






Akron, 0. 


Newark, O 

Springfield, O 

Steubenvillc, O 

Columbia, I'll 


T^ t-,"p 


fc ::;;:::. 




Newark, 0. 


ny 




Springficlil, O. 








Steubeiiville, 0. 


n Oral Report 

y n * 1 — 
y Oral Report 








Columbia, Pa. 


. 'J ■ " 


None printed 

None printed this yea 


•Bv iiome 


Danville, I'a. 






^ 


Hazletoii, Pa. 


Phoenixville, Pa 






Phoenixville, Pa. 


Daily late F. M 


None printed 




Warren, Pa. 


Williamsburg, Pa ... . 
Wilkes-Barre, Pa.... 

Crauston, R. I 

Providence. R. I 

Woonsocket, R. I... 

Columbia, S. C 

Denisou, Tex 

Palestine, Tex 

Walla Walla, Wash. 
Bellingham, Wash. . 
Oslikosh, Wis 


nk 

7672 

20279 

2748 

2295 

nk 


20027 


," . ■ ■. 




Williamsburg, Pa. 








Wilkes-Burre, Pa. 


u* y* 
n y 
y n 
n y 
y n 
y y 


St. 

y 


y 
y 

y 




j.^' 




Cranston, R. I. 








Providence, R. I. 








Woonsncket, R. I. 


" 


Now 




Columbia, S. C. 


At regular recitation 

30 minutes in P. M 




Denisou, Tex. 


," 




Palestine, Tex. 


Diiriug VcHr 
145s 


Aug. II, semi-annual 




Walla Walla, Wash. 








"x 


X 


All times 




State Normal School has model school where delinquents may attend. . 




Totals. - 

Yes or gave figures - 3 

Sometimes, - s 

No or none. 

Not known, - n 

No answer, 

Doubt 

Special Answer, 

See prec'd'g answer — 

Inconsistent, - ( 


67 
8 

47 two 


6t 48 

23 
5 

promot' 


30 

7 

1 perio 


15 
4 

8 

29 


7 


40 


26 

6 
3 


9 

25 

17 

3 


36 

' 23 
16 


23 

13 
29 


47 

" "7 
4 
17 


45 32 
22 '"28 
'6 6 

:;:■•■;, 


26 

7 

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: "How Many, When Do, Why Do Children Fail", Btni 5o. (or 1, 50o. for 20, $2.00 for 100. 



3ureau of Municipal Research 
261 Broadway, New YorU 



II. Forms used and questions asked by various city superin- 
tendents 

1. In Kearney, N. J., Superintendent Dressel requires : 

Name. 

Age. 

Grade. 

Was he promoted to your grade conditionally? 

Power of application. Best in what subjects? 

In what subjects is he the weakest? 

Is he capable of better work in these subjects? 

If not promoted would he retain his interest and ambition? 

Has he the mental power to do advanced work? 

Did you interview the parents? 

Was the pupil informed that he would fail of promotion if he did 
not improve? 

State any physical defects which may have interfered with pupil's 
progress. 

Did you take into consideration these defects when his case was 
decided? 

State any other possible cause for his defective work . 

Note ^hat pupils are not to be held back in a grade — 
If they have the ability to do advanced work. 
If their standing is good in English, reading and spelling. 
If they fail only in any one subject. 

2. In Hyde Park, Mass., three different promotion records 
are kept; (a) double promotion; (b) not promoted; and (c) 
promoted conditionally. For all three classes general questions 
are asked as to name, address, age, grade, repetition of previous 
grades if any, general health, sight, hearing, conditions if any 
when pupil started grade. For pupils not promoted these addi- 
tional questions are asked : 

Number of days absent during current school year. 

In what subjects is he deficient? 

To what causes are the deficiencies due? 

How many interviews have you had with his parents? 

How many supplementary reports have you sent to his parents? 

For pupils promoted conditionally, these questions are 
added to the above: 

Do you think he can do the work of the next grade? 

Is he to study during vacation? For examination? 

Is he physically able to stand this? 

3. In Cleveland, Superintendent Elson's statistical tables 
contain these headings : 

a By Grade : 

Number promotions and number non-promotions 
from entering grade first time 
from previously entered. 
Percent of promotions and non-promotions 
on number remaining 
on total registration 
b Distribution of pupils by studies and failures in each by grades. 

Per cent, of failures on enrollment. 
c Distribution of non-promotions by ages and causes. 

Causes : Irregular attendance, physical defects, incapacity, personal 

illness, indifference. 
Per cent, of all non-promotions due to each cause, 
d Distribution of non-promotions by ages and grades. 

[3] 



4- In Oakland, Calif., a card printed on two sides is used 
as here reproduced: 



NON-PROMOTION REPORT 
Name 



Age 



Grade 



CITY OF OAKLAND. CAL. 
School 



No. of Weeks in grade 



5ths done 



DatQ of Examination 



Record. Write F for failure ; P for passable 


; S for satisfactory. 
















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What subjects were taken in higher or lower grade? 



Wh.a't special help has been given pupil ? 



Previous Promotion Record 



Health 



(over) 



(Reverse side) 



What has been done to secure the co-operstion of the parents to prevent failure' 



Underline probable cause of failure: Irregular attendance, physical defects, personal ill- 
ness, incapacity, immaturity, indifference. 

Reason assigned by pupil for failure 



Remarks by teacher 



Remarks by Principal 



File one «opy with the Superintendent and one with 
the Principal within five days after date of promotion 



[4] 



Date filed 



In addition to this individual non-promotion report, a 
class promotion record card is kept calling for the following 
data from each teacher: 

Number promoted before examination or class promotion. 

Number promoted at examination. 

Number present during last month not promoted. 

Number who have left and not returned since beginning grade. 

Number who were more than 21 weeks in grade. 

Date class began the grade (give month, day and year). 

Date of promotion (give date of final examination). 

Number of school weeks from date of beginning grade to date o£ 
promotion. 

Name of teacher of preceding grade. 

Age distribution of promoted pupils at time of promotion. 

Names of pupils not promoted, age, fifths done by each and probable 
cause of failure. 

5. In Indianapolis, the blanks apportion failures among 
the following causes: 

a Slowness, dullness, inattention, idleness. 

b Mental defect. 

c Physical defect. 

d 111 health. 

e Irregular attendance. 

f Wrongly placed. 

In addition facts are given for: 

g Back in reading. 
h Back in arithmetic. 

In the different grades the proportion held back for slow- 
ness, etc., varies from 1.5% in 8-A to 9% in 5-B. Of 23,492 
children in white schools, 22,(X)0, or 9.36% were held back as 
reported in April, 1910. We give herewith the distribution 
by half grades (A in New York = B in Indianapolis) of the 
total held back in Indianapolis reported in April, 1910, and in 
New York in February, 1910: 

Percent Held Back. 



Grade 


New York 


Indianapolis 


Grade 


New York Indianapolis 


I A 


32.0 


3-2 


5 A 


17.0 8.1 


I B 


17.7 


S-9 


5 B 


17-0 6.8 


2 A 


16.9 


8.3 


6 A 


17-4 7-8 


2 B 


17.1 


7-2 


6 B 


17-2 4-9 


3 A 


17.2 


9-7 


7 A 


18.2 4.1 


3 B 


15-7 


8.3 


7 B 


16.S 4-3 


4 A 


IS-2 


9.2 


8 A 


16.8 3. 


4B 


17.2 


7.8 


8 B 


10.9 .7 



6. In Maiden, Mass., in addition to the Doubtful Promo- 
tion Blank already issued by us — Efficient Citizenship No. 361 
— the parent receives a quarterly report on studies, effort and 
behavior, including sessions absent, times tardy and times dis- 
missed. For the quarters ending December 24 and April 15 
the "prospect of promotion" is stated. On the reverse of this 
report blank is the following message to parent or guardian: 

To Parent or Guardian. 

This report sheet has been authorized by the School Committee as one 
method of informing parents of the progress of their children in school. It 
is believed that a statement by the teacher in plain English will prove more 
satisfactory than the use of the letters E, G, F, and U. 

Other means of informing parents of the progress of their children are 
the following: 

Supplementary Reports. — Whenever a pupil falls behind in his studies 
to such an extent as to endanger his promotion, or whenever his attendance 
or conduct is unsatisfactory, the parent will be notified immediately by means 
of a special report. (This is regarded as a distinct pledge made to the 
parent. Failure to notify is regarded as a breach of faith on the part of the 
teacher.) If no such supplementary report is received, the parent may rest 
assured that his child is making satisfactory progress and will be duly 
promoted. 

[5] 



Inspection of Pupils' Work. — That parents may have an opportunity to 
judge for themselves of the quality of the work done by their children, 
written matter will, so far as practicable, be sent home for inspection. Care- 
ful examination of this work will aid the parents in judging th'e ability and 
effort of their children and will prove a source of encouragement to both 
pupils and teachers. 

Personal Visitation. — No form of report card, and no inspection of the 
written work of the pupils, can take the place of a personal visit. Parents 
are urged to visit the school frequently, that they may observe the regular 
work and make personal acquaintance with the teachers who have charge of 
their children. 

7. In Elizabeth, N. J., Superintendent Clement issues a 
circular letter to teachers demanding the real reason for non- 
promotion : "For instance, it is not enough to report 'will not 
study' ; absence is not a reason unless the cause of absence is 
given." 

8. In New Bern, N. C, Superintendent Craven's report to 
the board, to teachers and to the public of failures in 1910 con- 
tains the following explanation as to 242 (31.5%) left over 
pupils based upon "careful investigation" : 

Tj or 32.8% were absent 20% or more of the entire session. 

40 or 16.5% moved elsewhere, many of them entered school. 

49 or 20.2% were slow and undeveloped pupils, largely in primary grades. 

30 or 12.4% were lazy, careless and indifferent, did not care to learn. 

(These pupils if awakened and inspired should have been 
promoted.) 
20 or 8.3% admit openly that they did not study. (These pupils were 
largely in 6th and 7th grades and should have been interested 
and so should have been promoted.) 
S or 2.6% went to work. 

5 or 2.6% came from ungraded country schools. (These pupils were pre- 
pared in some of their work and very much behind on 
other subjects, especially mathematics.) 

2 or .8% died. 

3 or 1.2% were left over on account of bad health. 

II or 4.5% were left over on account of defective eyes, ears, etc. 

9. In Northampton, Mass., Superintendent Congdon "does 
not believe in waiting until end of the year before asking the 
teachers for a report on pupils who are not passing," but re- 
quires a regular monthly report calling for a "discussion of 
the case of each pupil who is not doing passing work, giving 
reason for failure, telling what special effort is made to improve 
the pupil's work, and what has been done to make the parents 
acquainted with the facts." 

10. In Decatur, 111., Superintendent Wilson requires that 
all teachers submit to him two weeks before promotion time 
a tentative promotion report containing the name, age, terms 
in grade and standing of all pupils, plus reasons where pupils 
are tentatively reported for failure or "conditional pass." 

11. In Pottstown, Pa., Superintendent Rupert writes that 
teachers give from one to two hours daily to work with 
individual pupils. At the end of the third month the super- 
intendent examines all scholarship records, and through con- 
ferences with teachers seeks to determine the causes and apply 
the proper remedies. The last two weeks of the year, morn- 
ing sessions only are held, and the afternoons are devoted to 
the special instruction of pupils who are not quite up to the 
standard of promotion. Parents are asked through a special 
letter to cooperate by encouraging children to attend these 
classes. 

[6] 



12. In New York City, Superintendent Maxwell said to the 
school principals and superintendents on January 9th : 

Promote every child whose class teacher recommends on 
term marks; personally investigate each case of every child 
who is not recommended and examine to see whether he may 
not be promoted. 

Require in the case of each child not recommended for 
promotion a statement from his teacher in writing as to reasons 
why he is not recommended. It will not do to accept such a 
statement as 'deficient in studies.' 

A full statement from the teacher is preferable to having 
her check off a list of reasons submitted by the principal. 
While not lending itself to statistical arrangement, it does cause 
the teacher to think why she has not recommended a child for 
promotion. 

13. This rule is illustrated by the report of a teacher of 
3-B grade in Great Falls, Mont., who replies to the question, 
cause of failure in your judgment: 

F. B. — Absent five weeks with scarlet fever. 

A. R. — Did not enter school until the middle of October. 

G. B.— Deficient. 

M. H. — Entered in November from Lewiston and was not up to grade. 
D. H. — Conditioned into 3-B from 2-A I very weak 
M. H. — Conditioned into 3-B from 2-A > pupils. 

14. For other printed blanks which demand causes of 
failure of individual pupils, write to school superintendents of 
New Bedford, Mass., Great Falls, Mont., Cripple Creek, Colo., 
Mt. Vernon, N. Y., Williamsport, Pa., Council Bluffs, la., and 
Providence, R. I. 

15. For samples of full newspaper reports, with causes, 
write to the school superintendents of Woonsocket, R. I. and 
Waterbury, Conn. 

16. For bulletins already issued by this Bureau, repro- 
ducing the blanks used in Marlborough and Maiden, Mass., 
address Efficient Citizenship Nos. 404 and 361 respectively. 
For Montclair's letter to parents, address Efficient Citizenship 
No. 391 ; for Williamsport's attention to doubtful pupils, ad- 
dress Efficient Citizenship No. 368; for data contained in 
Cleveland's (1909) school report, address Efficient Citizenship 
No. 226. 

III. Extracts from letters addressed to the Bureau of Muni- 
cipal Research and from official reports 

I. From Decatur, 111., Superintendent Wilson writes: 

The following questions should be asked by teacher, prin- 
cipal and superintendent before non-promotion : 

Was the child in ill health? 

Was he hampered by physical defects? 

Did home conditions tax his energies and cause him to fail 
to get needed rest at night, deprive him of sufficient food and 
detain him from school? 

Was he growing rapidly so that his energy and vitality were 
all consumed here? 

[7] 



Was he with pupils so much younger and so much different 
socially that his failure to adjust to their atmosphere and spirit 
handicapped him? 

Was the room so overcrowded that he did not receive in- 
dividual aid? 

Was he in a part time school? 

Was he with a teacher who was incompatible? 

Was he put at a disadvantage by changing schools or teach- 
ers two or three times? 

Are you absolutely certain the requirements of the course 
of study and the standards for promotion are ideally correct? 

Is his threatened failure due to your general estimate of his 
ability or does it result from his standard in percentage from 
a series of examinations imposed from above? 

2. From Detroit, Mich., Superintendent Martindale attri- 
butes a decrease in the percentage non-promoted in thirteen 
years from 25^ to 8% to the system of promoting children 
solely upon their ability to do advanced work; and further at- 
tributes the following good results to this method: 

The establishment of kindergartens. 

The lengthening of the term of normal training for teach- 
ers. 

The raising of the standard required for the appointment 
of teachers. 

The division of the city fnto ungraded districts and the es- 
tablishment of an ungraded school in each district. 

The establishment of special school for the deaf, back- 
ward and other children. 

Medical examination of pupils. 

The appointment of a child study committee to investigate 
all conditions surrounding pupils and especially to look into the 
physical and mental conditions of special cases. 

The introduction of manual training and industrial training. 

3. New Bedford, Mass., Cripple Creek, Colo., and Provi- 
dence, R. I., never hold a pupil more than two terms in a 
grade, hoping that the new work, new teacher and other en- 
couragements may help the child to advance normally. Su- 
perintendent Maxwell reports that "hundreds have been held 
in one grade two, four, six terms." 

4. In Rutland, Vt., 90^0 of the children attending four 
weeks of "catch up" vacation school were promoted, "and about 
90% of those thus promoted made good in the advanced grade 
the following year. In this way very few of our pupils in the 
5th grade and above really fail in doing one year's work." 

5. Waltham, Mass., pursues a policy of daily promotion 
and transfers a child without delay to the class in which he 
can do the best work. 

6. In Cleveland, Ohio, Superintendent Elson has recently 
adopted three promotion periods a year instead of one ; (a) to 
save children who are not well started in the grade from being 
a drag in the class for the whole year ; (b) to reduce the amount 
of work repeated by those failing; (c) to enable the bright 
child to advance more rapidly. 

[8] 



7- In Fort Smith, Ark., Superintendent Kuykendale tries 
through conferences with parents to eliminate much of the ir- 
regularity of attendance. In a study of backward children ex- 
tending over several years, he found that late entrance, fre- 
quent moving and similar causes caused two-thirds of the 
retardation. 

8. As has already been noted, 46 superintendents of the 
76 answering our inquiry, plan to discuss non-promotion in 
their next reports. Of the 135 school reports for 1908-1909 
and 1909-1910 which the Bureau has at its disposal, only 35 
give any figures on the extent of non-promotion, or state 
what definite steps are being taken to study the problem and 
prevent non-promotion. In addition to the report of Super- 
intendent Elson of Cleveland (1909) already mentioned, sug- 
gestive material is to be found in the following reports : 

a Promotion Tables 

Tables of promotions and failures may be found in the 
reports of New Britain, Conn. (1909) ; Meriden, Conn. 
(1910); Moline, 111. (1910) ; Michigan City, Ind. 
(1910) ; Owensboro, Ky. (1909); Medford, Mass. 
(1909); Melrose, Mass. (1909); Maiden, Mass. 
(1909); Cincinnati, Ohio (1909); Dover, N. H. 
(1909); Johnstown, Pa. (1910) ; Salt Lake City, 
Utah (1909); Barre, Vt. (1909); Marinette, Wis. 
(1910); Baltimore, Md. (1909); Harrisburg, Pa. 
(1909); Kansas City, Mo. (1910); 

Philadelphia, Pa. (1909). gives the per cent, promoted 
for the years 1905-1909 and the number and per cent, 
in grade from 20 to 29 months, 30 or more months. 
The per cent, promoted in 1907 was 69.3 ; in 1909, 
81.5. The per cent, of the number in grade 20 or 
more months in 1907 was 12.7; in 1909, 3.9. Super- 
intendent Brumbaugh attributes this very "gratify- 
ing reduction of the number of repeaters in the 
grades to (i) the compilation and publication of dis- 
trict and city reports, and (2) to the intelligent 
studies of these and the underlying conditions that 
have been made by the principals and the district 
superintendents." 

Chicago, 111. (1910), gives tables including the number 
promoted and per cent, of promotions for each school. 
Regarding retardation. Superintendent Ella Flagg 
Young says : "With a clearer understanding of the 
relation which should always obtain between the 
principal and each and every pupil in the school, there 
will be a much smaller problem for solution under 
the head of retardation." 

Manchester, N. H. (1909), gives tables of promotions 
and failures for each term and purposes "to pro- 

[9] 



ceed systematically and embody in the annual re- 
port the records (which shall include causes) of all 
such (failures), that the public may be informed." 

b Recording Causes 

In addition to tables of figures, the following reports 
give the causes of non-promotion and the number or 
per cent, of pupils failing under each cause: Moline, 
111. (1910) ; Melrose, Mass. (1909); Concord, N. H. 
(1910) ; Williamsport, Pa. (1910) ; Columbia, S. C. 
(1910). 

c Special Studies 

Special studies of non-promotion and its causes were 
made m Moline, 111. (1910); Williamsport, Pa. 
(1910) ; Columbia, S. C. (1910) ; Meriden, Conn. 
(1910) ; Lowell, Mass. (1909). 

d Group Systems 

Fresno, Cal. (1910) reports favorably on the plan of 
dividing classes into major and minor sections in 
each subject, by which more individual attention 
may be given to the minor sections. Another suc- 
cessful plan is that of arranging sections on the basis 
of pupils' general capabilities and of passing them 
along as rapidly as possible. 

Baltimore, Md. (1909), reports the introduction of the 
group system by which, among other benefits, are ob- 
tained (i) better distribution of pupils; (2) better 
gradation of pupils with possibility of rating; (3) 
special classes. Pupils advance at varying rates of 
speed and may be promoted at any time. 

Cambridge, Mass., and Portland, Me. (both 1909), 
contain descriptions of their respective plans for the 
gradation and promotion of pupils by which pupils 
are divided into different groups and divisions ad- 
vancing at varying rates of speed throughout the 
entire course. 

e Individual Help 

New Orleans, La. (1910), Minneapolis, Minn. (1909), 
Mt. Vernon, N. Y. (1910), Glens Falls, N. Y. (1910), 
Dover, N. H. (1909), Concord, N. H. (1910), West 
Chester, Pa, (1910), report that individual attention is 
given during the year to pupils in danger of being 
held over. 

Pasadena, Cal (1909), gives help by (i) special stud}; 
rooms in charge of a carefully selected teacher; (2) 
alternation of class recitation and study periods so as 
to use study time for pupils needing special help; 
(3) attention to individuals by the examination by 
the health department. 
[10] 



San Francisco, Cal. (1909), has ungraded classes for 
both individual and class instruction of weak pupils. 
Pupils weak in one subject are coached in that sub- 
ject; pupils weak in all subjects are transferred to 
the ungraded room. 

Marinette, Wis. (1910), states that the teachers must 
supply Superintendent Landgraf at the end of the 
year with a list of all pupils, age, physical condition 
and causes of failure. 

f Other Reports 

Watertown, N. Y. (1910), reports promotion by subject. 
Harrisburg, Pa. (1909), devotes some space to stating 
that the only basis of promotion should be the ability 
of the child to do the next year's work and not "the 
mere fact of having covered a fixed amount of sub- 
ject matter in the school room." 

Columbus, Ga. (1909), gives the returns of an investi- 
gation by Superintendent Gibson on the relative 
merits of annual and semi-annual promotions and 
the division of classes into sections. Extracts from 
letters of 32 superintendents are quoted. 

Recent Progress in New York City 

Until uniform and adequate records and reports are in 
general use, the influence of a few large cities and of progres- 
sive small cities upon educational methods will be dispropor- 
tionate to the merit of their contributions. The large cities 
will influence because of numbers ; the small cities will fail to 
influence for lack of numbers. Even after it is as easy to learn 
about 750,000 school children in small cities as about 750,000 
in New York City, the experience of the greatest public school 
system in the world will continue to be of interest and value 
to all educators. 

The following is a digest of extracts from the report of 
New York City's superintendent of schools for the year ending 
July 31st 1910: 

As far as the schools of New York City are concerned, I 
have finally settled the question as to the chief cause .... of 
retardation .... late entrance to school. Other causes of re- 
tardation there are, however, for which the school must accept 
its share of blame. To determine what these causes are, and if 
possible to find remedies, I appointed eight committees of (40) 
principals early in the school year to study the whole question 
The eight committees were in substantial accord in stating that 
the following are the chief causes of failure on the part of 
pupils to secure regular promotion from grade to grade. The 
causes, however, are not stated in any order of intensity: 

Irregular Attendance — Due to poor home conditions; loose- 
ness of parental control; ignorance of parents; lack of oppor- 
tunities for home study; poverty of home requiring pupils' as- 
sistance; sickness of other members of the family; lack of proper 
clothing; feeble health of individual pupils; poverty of surround- 
ings. 

[Tl] 



Truancy — Which is attributed by the principals to three 
chief causes: Lack of support by the courts in enforcing the 
Compulsory Education Law; lack of co-operation of parents; 
and lack of a sufficient number of attendance officers. 

Ignorance of the English Language, due to foreign birth 
and to the fact that English is not the language of the home. 

Late Entrance into School, due to two causes: The pres- 
ence of immigrant children, and the fact that many children are 
sent to private schools before they enter the public schools. 

Transfer from School to School — Such transfers involve loss 
of time owing to variations in the interpretation of the course 
of study and syllabuses, and in following different sequences of 
topics in different schools, and frequently to delay in entering 
school after removal from one school district to another school 
district. 

Physical Defects — These are caused or intensified by lack of 
medical care; nervous troubles; adenoid growths and enlarged 
tonsils; defective eyes, ears and teeth; malnutrition; physical 
precocity; lack of play and exercise; unsanitary conditions. 

Sluggish Mentality — Sometimes this feature takes the form 
of positive mental defect and sometimes it characterizes pupils 
as slow in receptivity and response. Sometimes it takes the 
form of moral defects, such as dishonesty, lying and cheating, 
which are intensified by improper reading, the following of bad 
" examples, and petty defiance of law in the streets. 

Excessive Size of Classes, which prevents teachers giving 
necessary individual instruction. 

Prolonged or Frequent Absences of Teachers, during which 
their classes are taught by substitutes who are sometimes in- 
different and sometimes inefficient. 

Part-Time, which prevents pupils from doing the work of 
the lower grades thoroughly. 

Varying Standards of Rating Pupils — Some principals and 
teachers adopt too high a standard; some too low a standard. 

Inefficient Teaching, due to teachers' talking and doing too 
much for their pupils; lack of thoroughness; obsolete aims and 
methods in teachmg on the part of some of the older teachers; 
occasional lack of the power of discipline; neglect of opportunity 
afforded by the study period to teach children how to study. 

Improper Methods of Promotion, due to unnecessarily 
holding back pupils; not making promotions with sufficient 
frequency; and to differing standards of promotion. 

The anaylsis made by these principals of the causes of 
retardation in their various schools showed that the two chief 
factors are personal illness on the part of pupils and late en- 
trance into school. 

The remedies suggested by the various committees were 
many and heterogeneous. There seemed to be little agree- 
ment as to what, if any, changes in our system should be made 
in order to eliminate as far as possible the admitted evils of 
retardation. In order to obtain a more definite result, I 
classified the various suggestions and submitted them (April 
i8, 1910,) in the form of direct questions to a committee con- 
sisting of the chairmen of the original committees. 

On pages 82-86 are found the committee's answers to the 
twelve following questions : 

Is is advisable to divide the matter in each subject of 
study in each grade of the public schools and topics to be taken 
up in the same order in all schools? 

Should a uniform method of rating pupils in studies and a 
uniform standard for promotion be formulated? 

How often should final or general promotions be made? 

[12] 



What rules should be adopted to determine the number of 
terms a pupil may be held in any one grade? 

Is is advisable to modify the course of study for classes 
of retarded or backward pupils? What subject, if any, or what 
portions of subjects if any, should be omitted from the present 
course in such classes? 

Is it advisable to organize special classes for the rapid 
advancement of particularly bright pupils? 

Is is desirable to make a distinction between the graduates 
of the elementary schools who may be admitted to the high 
school and the pupils who have passed through all grades with- 
out gaining enough proficiency to be entitled to a diploma? 

Is is advisable to employ assistant teachers to coach back- 
ward pupils? 

Should algebra and inventional geometry be eliminated 
from the course of study in the elementary schools? 

Should science be eliminated from the 7th and 8th grades 
of the elementary schools? 

How may enthusiasm be stimulated and the will to work 
developed in indifferent pupils? 

Should foreign languages be eliminated from the course of 
study of the 8th year of the elementary schools? 

In Appendix A to the superintendent's report will later 
appear valuable suggestions written by Associate City Super- 
intendent Gustav Straubenmiiller. 

On non-promotion the city superintendent writes : "It is 
quite manifest that more pupils should be promoted each term 
than are promoted at present, and that more should be done 
than is now done for the not-promoted." (See earlier reference 
to written explanation by teachers and to presumption that a 
child shall pass if able to do the next term's work — page 7.) 

Attention is called to the fact that promotions were more 
liberal in June than in January; that the number of over age 
children was smaller in June than in January, and that the 
promotion of this particular class of pupils was more generous. 
Poor teaching is classed with absence, illness and indifiference 
among the reasons why "there will always be a considerable 
percentage of pupils who should not be promoted." 

The Danger of Acceleration 

Writing to the school editor of the New York Globe, a 
Bronx principal has protested that the more generous promo- 
tion of pupils in June was too generous and that large numbers 
of children were being advanced to do work for which they 
were unprepared. 

The percentage of the promotions at schools has been 
mysteriously and suddenly increased . Instead of investigating 
the cause of non-promotion and finding faults and weaknesses 
in the course of study, methods of teaching, in over-crowded 
classes, instead of finding a remedy for these evils, wholesale 
promotions were introduced merely to raise the percentage 
figures mechanically. If the number of promotions is relatively 
small the wise thing to do is to find out why they are small. 
To promote more pupils whether they are fit or not is a folly 
which can only be compared with that of the ostrich who hides 
his head in the sand so that no one can see it 

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At the meeting of the New York City Teachers' Associa- 
tion, January 17, 191 1, the following resolution was adopted: 

Resolved, that it is the sentiment of this association that 
the chief cause of retardation and its concomitant of over-age 
pupils in the elementary schools is the overburdened course 
of study. 

That the teachers of our schools work harder now than 
ever before to secure the advancement of their pupils. 

That any attempt to force promotions on an inflated per- 
centage can only result in accentuating the difficulty and that 
the resulting deterioration in the moral fibre of principals, 
teachers and pupils from such evasive and dishonest methods 
must bring consequences far more disastrous to the schools 
than any now resulting from retardation. 

Concrete illustrations of acceleration were given in a 
New York Times editorial, January 13th, 191 1 : 

A despairing teacher has brought to our attention the work 
of some forty boys of the 8A grade who were asked to tell 
in their own words the substance of Goldsmith's 'Deserted 
Village' and Burns' 'A Man's a Man for a' That.' The following 
samples are fairly typical : 

FOR A' THAT AND A' THAT 
See that man over there who walk as through he owned the 
world he is but a lord and yet their our many who does his bid- 
ding as through he was a king but he is nothing more than an 
honest man. 

THE DESERTED VILLAGE 
While I was wandering around I meet with grief I always 
had hope that before candle within me when out that I would 
be sitting around that little old fire place where many a happy 
an hour was spent and show them that my life long hours had 
not been spent on doing nothing. 

These boys are from 14 to 17 years old. Judging by their 
names, they are of English, German and Irish extraction. They 
have attended school at least seven years, during which time 
they have been periodically promoted. By the operation of 
what principle or policy they were placed among those con- 
sidered deserving of promotion we leave to the educational au- 
thorities to conjecture or explain. But if the conduct of the 
schools is to be investigated, the investigation ought not to stop 
short of inquiry into the methods of promotion from grade to 
grade, and the degrees of proficiency that are deemed adequate 
for promotion in the several schools. 

Those wishing to make studies of the extent and causes of 
retardation and non-promotion in their own schools will do 
well to obtain copies of Superintendent Maxwell's report. 
Building upon the tremendous gains marked by this report 
and the study which preceded it will be easy because so many 
definite questions are propounded and because the written ex- 
planations by teachers will furnish facts taken directly from 
individual children who fail rather than from theories or be- 
liefs of principals, teachers and superintendents. In a short 
time it should be possible to state the causes in order of in- 
tensity instead of emphasizing the fact that they are not 
stated in any order of intensity. 

While late entrance to school is given as the chief cause 
of retardation, the table on pages 91-92 of the report shows 

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that in January and June respectively 58,500 and 49,000 who 
failed of promotion were of normal age. Again, of 19,000 who 
failed in the i-A grade in January only 2,300 were over age, 
so of 17,000 in i-B grade only 2,124 were over age. Further- 
more, between September and June 30, for which date more 
generous and more liberal promotions are noted, 51,000 chil- 
dren dropped out of the elementary schools in addition to 
those who graduated in February. These facts are cited to 
raise a question that is fundamental to any discussion of re- 
tardation, non-promotion and late entrance: Shall non-pro- 
motion and retardation figures be based upon ages or upon 
failures ? 

In New York City normal age for the first grade includes 
all children (a) under six, (b) six to seven, and (c) seven to 
eight. Normal age in the fourth year includes (a) under nine, 
(b) nine to ten, and (c) ten to eleven. In other words, a child 
may come at five (3,918 June 30, 1910) fail once or twice in 
his fifth year, fail twice in his sixth year, and fail once in his 
seventh year, and still be classed as normal and unretarded 
when entering school the following September. 

If the New York figures for over age followed Cleveland's 
classification and gave but one year to a grade, the following 
additions would be necessary to those over age in each of the 
eight regular grades : 

1 16,777 S 2,746 

2 23,343 6 19.533 

3 24,167 7 18,413 

4 23,841 8 13.043 

In addition several thousand children should be added 
who are excluded from the age tables because in special 
classes for the over age, for non-English speaking and other 
handicapped children. Thirdly, there should be added part 
of the 51,000 children who represent the difference between 
net enrollment for the year and those in school June 30th 
when the age tables were prepared, after excluding graduates. 

Readers of this bulletin may take for granted that for 
some time to come the subjects of retardation, non-promotion, 
undue acceleration, late entrance, etc., will be the subject of 
continuous concern on the part of New York City's teachers, 
principals, superintendents and local school boards and will do 
well to apply for information to the school authorities at 59th 
Street and Park Avenue. 

Two Other New York Inquiries 

Two other contributions to these subjects are being made 
this year in New York City: (i) the local school boards, which 
have 230 members, are taking greater interest than ever before 
in school matters, and are at this particular time endeavoring 
to work out uniform standards of efficiency and inquiry 
among board members themselves. For information apply to 
Leo Arnstein, secretary, borough of Manhattan, City Hall; 

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^M SO 



— 019 639 517 9 * 

(2) the proposed inquiry by the board of estimate and appor- 
tionment will deal with these same questions, first from the 
standpoint of the amount of money involved and the directions 
in which money shall be spent so as to decrease evils, and 
secondly, from the standpoint of methods of organization and 
supervision which will mitigate causes of non-promotion and 
retardation. The chairman of the committee is President John 
Purroy Mitchel, 51 Chambers street. 

Nation Wide Demand for a. Common Language in Describing 
School Experience 

At the Mobile meeting of the division of superintendence 
of the National Education Association next month, a report of 
progress will be made by the special committee appointed at 
the Indianapolis meeting, 1910, to recommend uniform and 
adequate records and reports. The secretary is Prof. George 
D. Strayer, Teachers' College, New York City. 

At Mobile a form of financial statement will be recom- 
mended upon which the N. E. A. Committee, the U. S. Bureau 
of Education, the U. S. Census Bureau and the Association 
of School Auditors have agreed. A common language for the 
discussion of such subjects as non-promotion and retardation 
should be worked out and agreed upon in time to afifect the 
records with which school men will begin their work in Sep- 
tember, 191 1, and in time to influence the discussion of the 
school superintendents for the year ending June, 191 1. 

For discussion of the general work of the Bureau of Muni- 
cipal Research for efficient citizenship, budget making, ac- 
counting, etc., address : 

BUREAU OF MUNICIPAL RESEARCH, 

261 Broadway, New York. ' 

Efficient Citizenship No. 416 



Por additional copies of this pamphlet send 5c. for 1, 50c. for 20 
$2.00 for 100. 

Extra copies of Hon-Fromotion Table, rolled for mounting-, 5 cents each. 



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